Chapt 14

ECONOMIC SURVEY OF DELHI, 2001-2002124

CHAPTER 14

URBAN DEVELOPMENT

1. The urbanisation of Delhi dates to the beginning of the 20th Century. In 1901, 52.76% of the totalpopulation of Delhi was urban. The urban area in Delhi territory has increased from 22% in 1961to 62.5% of the total area in 2001.

2. The rapid urbanisation of Delhi has resulted in a sharp increase in the density of population. In1901, the density was 274 persons per sq km, this increased to 1176 persons per sq km in 1951 and9294 persons per sq km in 2001. This pace of urbanisation has had its impact on the contributionof the primary sector in State Income of Delhi. The contribution of the primary sector which was7.10% in 1960-61 in the State Income of Delhi has declined to 1.57% in 2000-01.

3. URBAN PLANNNG PROCESS

3.1 The era of urban planning in Delhi commenced in 1824 when a Town Duties Committee wasconstituted for the development of the Cantonment, Khyber Pass, the Ridge area and the CivilLines area by the Britishers. Thereafter, urban development picked up in Delhi with the compo-sition of the first Municipal Committee of Delhi in 1883. The Municipal Building bye-laws were firstmade operational in Sadar Bazar, Subji Mandi and other suburbs.

DELHI IMPROVEMENT TRUST

3.2 For planned development of the city, the Delhi Improvement Trust (DIT) was constituted inMarch, 1937. In addition to manage the acquired land, Najul Land, DIT was also assignedthe job of rehabilitation of the households to be shifted from slums and sub-standard ar-eas.

MASTER PLAN

3.3 Delhi Development Authority (DDA) was set up on 30th December, 1957 under the DelhiDevelopment Act, 1957, as a successor to DIT for the planned development of Delhi. DDAprepared a Master Plan for Delhi which was published in 1962. This Master Plan envisageddevelopment of 44770 hectares of urban area by 1981 for urban population of 46 lakhs.Subsequently, development of an additional 4000 hectares of urban area at Patpar Ganj,Sarita Vihar and Vasant Kunj was added in the target of the first Master Plan.

ECONOMIC SURVEY OF DELHI, 2001-2002 125

3.4 The first Master Plan for Delhi (1961-81) was reviewed and amended for its extension foranother 20 years by DDA and published in 1990. This amended Master Plan (Second Mas-ter Plan 2001) envisaged acquisition of 20000 hectares of land for urban area extension ofDelhi by 2001 making a target for development of 68770 hectares urban area.

3.5 DDA has subsequently proposed to develop 83804 hectares of land as urban area withinthe frame work of MPD 2001. This includes 3360 hectares area for urban developmentalong National Highways, 1996 hectares of Dwarka Phase-II and 9700 hectares of YamunaRiver bed.

3.6 DDA has reviewed the provisions of the Master Plan 2001 and the actual development ofurban area in Delhi to date with a view to revise the Master Plan with reference to thetarget period for 2021. DDA, Ministry of Urban Development, Government of India havebeen requested to take into account the findings and recommendations of Delhi UrbanEnvironment and Infrastructure Improvement Project (DUEIIP-2021).

4. REGIONAL PLAN

4.1 The Master Plan for Delhi (1961-81) recommended development of the region surroundingDelhi to check the in-migration in to the city. Since then efforts have been made to initiateplanned development of the region surrounding Delhi within a policy and institutionalframework. In this process the National Capital Region Planning Board Act, 1985 waspassed by Parliament and the National Capital Region Planning Board (NCRPB) cameinto existence.

4.2 The National Capital Region covers an area of 30242 sq. kms including Delhi (1483 sq. kms)(Map 14.1). The details of the areas of the other States included in National Capital Regionare indicated below:


Statement 14.1

DISTRICT WISE EXISTING AREAS OF N.C.R.

SN District/Tehsils Area in Sq. Kms.

NCT-Delhi

(i) Whole of the NCT-Delhi (No change in the existing area) 1483.00

Haryana

(i) The whole of District of Gurgaon comprising the tehsils of Gurgaon, Nuh,Ferozepur-Jhirka, Pataudi, Punhana and Sohna 2760.00

(ii) The whole of District Faridabad comprising the tehsils of Ballabgarh,Faridabad, Palwal, Hathin and Hodel 2105.00

(iii) The whole of District of Rohtak comprising the tehsils of Rohtak and Meham 1667.77

(iv) The whole of District of Sonipat comprising the tehsils of Sonipat, Gohana,Gannaur and Kharkhoda 2260.53

(v) The whole of District of Panipat comprising tehsils of Panipat, Samalkhaand Israna. 1249.88

(vi) The whole of District Jhajjar comprising tehsils of Jhajjar, Bahadurgarhand Beri 1867.70

(vii) The whole of District of Rewari comprising the tehsils of Rewari, Bawaland Kosli. 1559.00

Sub-total 13469.88@

Uttar Pradesh

(i) The whole of District of Bulandshahr comprising the tehsils of Anupshahr,Bulandshahr and Khurja 3515.00

(ii) The whole of District of Meerut comprising the tehsils of Meerut, Mawanaand Sardhana 2566.00

(iii) The whole of District of Ghaziabad comprising the tehsils of Ghaziabad,Hapur and Garhmukteshwar 1971.00

(iv) The whole of District of Gautam Budh Nagar comprising the tehsils ofGautam Budh Nagar, Dadri and Jewar 1456.00

(v) The whole of District of Bhagpat comprising the tehsils of Bhaghpat,Baraut and Khekra 1345.00

Sub-total 10853.00

Rajasthan

(i) The tehsils of Alwar, Behror, Ramgarh, Mandawar, Kishangarh Bas, Tijaraand Kot Kasim of district Alwar. 4493.00

Sub-total 4493.00

Total area of NCR 30299.00@

Source : NCRPB

@ Because of reorganisation of Districts and Tehsils boundaries in Haryana, actual presentarea is indicated in this table as against total notified area of 30242 Sq. kms.


Map 14.1

NCR - CONSTITUENT AREAS


4.3 The NCRPB prepared the National Capital Regional Plan 2001 which was published inJanuary, 1989 with the goal of achieving "a balanced and harmoniously developed re-gion, leading to dispersal of economic activities and immigrants to Delhi, thereby leadingto a manageable Delhi. This is to be achieved by the progressive deconcentration ofpopulation and economic activities in the Region and their judicial dispersal to variouspriority towns as identified in the Plan".

4.4 This Regional Plan envisaged a target of deflecting 20 lakhs people from NCTD to NCRtowns by 2001. With this target, NCRPB projected Delhi's population as 112 lakhs in 2001.However, on account of the failure in targeted implementation of Regional Plan-2001,there was virtually no impact on the continuous migration into Delhi and the result is thatDelhi's population reached 137.83 lakhs in 2001.

4.5 This Regional Plan has been reviewed by the NCRPB and observed that: "While the key ofthe future of Delhi lies in the sequential development of its metropolitan region, enoughhas not been done despite all the plans. A lot remains to be accomplished in the comingdecades. The planning of NCR is only the initial first step to the next and the following. Thesteps have to be taken in right earnest with implicit faith in the future of Delhi, for otherwisethe nation's capital cannot survive, much less be in a position to perform the tasks thenation has promised its peoples in the next century and the new millennium".

4.6 The NCRPB has decided to prepare the National Capital Regional Plan-2021 for which 8study groups were constituted in March, 2001. 7 of these study groups have already sub-mitted their reports till January, 2002.

4.7 The study group on NCR Policy Zones suggested the vision for NCR Plan-2021 that the NCRbe planned as an economically vibrant, spatially efficient and socially equitable entitywhere developmental opportunity for all are available.

4.8 The study group suggested the objectives for Regional Plan-2021 as under:

(i) To develop NCR as an integrated spatial system of urban and rural settlements toaccommodate economic activities and to provide socio-economic opportunities andinfrastructure for all including the economically poor sections of the society;

(ii) To provide rail and road based mass transportation system well integrated with land-use pattern, economic activities and settlement system;

(iii) To provide rational regional land-use pattern based upon socio- economic require-ments, land suitability and environmental sustainability; and

(iv) To initiate and adopt innovative and dynamic approaches for mobilisation of re-sources and implementation of the NCR Plan with participation of public, privateand joint sectors, external agencies, Central and State Governments, corporate bod-ies and other concerned agencies.


4.9 The study group after review of the existing policy zones of the NCR Plan-2001 suggestedthree pronged policy zones for Regional Plan-2021:-

(i) DMA including NCT - Delhi.

(ii) Rest of the NCR.

(iii) Highway Corridor Zone

5. URBAN DEVELOPMENT SCENARIO IN DELHI

5.1 The Master Plan for Delhi 1961-81 further extended to 2001 was prepared by DDA andapproved by Government of India to ensure appropriate balance between the spatialallocations for the distribution of housing, employment, social infrastructure, and trans-port, and adequate arrangement to accommodate all other physical infrastructure andpublic utility systems in Delhi. To ensure appropriate allocation of land and developmentof all public utility/physical infrastructure, MPD 2001 made provisions of 9 land-use catego-ries with further 37 use zones. Unfortunately, the objectives of the Master Plan could not beachieved due to a failure in making available adequate developed land for physicalinfrastructure and public utilities to the concerned agencies in time on the one hand andthe lack of adequate developed land at affordable rates to the public for housing.

TYPE OF SETTLEMENT

5.2 Because of the lack of adequate developed land at affordable prices to different catego-ries of residents, various types of unplanned settlements have come up in Delhi. Accordingto an estimate, the population residing in different types of settlements in 2000 was asunder :

Statement No. 14.2

TYPE OF SETTLEMENT & POPULATION

S. No Type of settlement Approx. Population in lakh (2000)

1 J.J. Clusters 20.72

2 Slum Designated Areas 26.64

3 Unauthorised Colonies 7.40

4 Resettlement Colonies 17.76

5 Rural Villages 7.40

6 Regularised-Unauthorised Colonies 17.76

7 Urban Villages 8.88

8 Planned Colonies 33.08

Source : DUEIIP-2021


6. COST OF UNPLANNED DEVELOPMENT

6.1 With the emergence of various types of settlements, particularly unplanned settlements, theurban scenario of Delhi has become very a typical and difficult for management by con-cerned agencies. The Government of Delhi is bearing a huge cost on making these settle-ments basically habitable viz. worth living for the residents, as is evident from the followingfacts.

REGULARISED-UNAUTHORISED COLONIES

6.2 Government of India regularised 567 unauthorised colonies in Delhi in 1977. To providebasic civic amenities in these colonies, a plan scheme was initiated in 1979-80. An invest-ment of Rs.469.96 crore (plan funds released) has been made in these colonies upto March,2002. This amount does not include the cost of water supply, electrification and solidwaste disposal system.

J.J. RESETTLEMENT COLONIES

6.3 The scheme for resettlement of JJ Cluster households was started in 1961 in Delhi. Thecommencement of the scheme was made with the allotment of two room tenements to3560 JJ Cluster households. Subsequently, 80 sq. yard plots were allotted to JJ Clusterhouseholds for resettlement. The size of the plot was reduced to 40 sq. meter and furtherreduced to 25 sq. meter. During 1975-77 a massive programme for resettlement of about1.97 lakh JJ Cluster households was undertaken by DDA with the development of 26 new JJResettlement Colonies. A plan scheme was initiated in 1979-80 to provide and improvebasic civic amenities in all these 44 Resettlement Colonies in which about 2.4 lakhs JJ Clus-ter households were resettled. These JJ Resettlement Colonies were transferred from DDAto MCD in 1988-89 with the assurance that Government of Delhi will provide maintenanceexpenditure to MCD under non-plan. Since 1979-80 upto March, 2002 an amount ofRs.451.67 crore (plan funds released) under plan and an amount of Rs.470.18 crore undernon-plan for maintenance has been released by Delhi Government.

URBANISED VILLAGES

6.4 At present there are about 135 urbanised villages in Delhi. A plan scheme to improve thecivic services in these urbanise villages was started in 1979-80. Since than an amount ofRs.166.82 crore (Plan funds released) has been provided to MCD and DJB upto March,2002.

JHUGGI JHONPRI CLUSTERS

6.5 With the continuous flow of migrants on the one hand and lack of affordable housingparticularly for the poor, the settlements in the form of JJ Clusters started in Delhi even priorto independence. However, the magnitude of JJ Clusters prior to 1970 remained within


manageable limits and accordingly most of such households (43000) were resettled. Thepost 1970 migration trend speeded up along with a massive increase in JJ Clusters in Delhi.

6.6 The exact number of JJ Clusters was enumerated in a survey conducted by Government ofDelhi in 1990. In this survey about 2.59 lakhs households were counted in 929 JJ Clusters.The estimates of Slum Wing of MCD indicates about 1100 JJ Clusters with 6 lakh householdsat present in Delhi. During the 7th Five Year Plan a scheme was started to provide basicminimum civic amenities in all the JJ Clusters. In some of the JJ Clusters in-situ upgradationwas also taken up. Since then an amount of Rs.552.11 crore (plan funds released) hasbeen utilised under this scheme. In addition to implementation of the plan scheme bySlum Wing, a number of other departments/agencies are also implementing plan schemesfor welfare of JJ Cluster households. In total, plan funds of about Rs.80-100 crore are beingutilised by different departments in implementation of these schemes in each year. Thedetails of the scheme are indicated below:

Statement 14.3

LIST OF PLAN SCHEME FOR J.J. CLUSTERS

(Rs. in Lakhs)

SN Name of the Sector/Scheme Outlay 2001-02

I Urban Development

1. Construction of Basti Vikas Kendras 100.00

2. In-Situ Upgradation of JJ Clusters 150.00

3. Environmental Improvement in JJ Clusters 200.00

4. Construction of Pay Use Jansuvidha Complex 100.00

5. Shishu Vatika/Common Space in JJ Clusters 50.00

6. National slum development programme 1900.00

7. Sanitation in JJ Clusters 2500.00

8. Urban Basic Services 150.00

9. Swaran Jyanti Shahri Rojgar Yojana 125.00

II Water Supply & Sanitation

1. Water supply in JJ Clusters 1000.00

III Energy

1. Electricity connection in JJ Household 500.00

IV Health & Family Welfare

1. Mobile Van Dispensaries for JJ Clusters. 300.00

2. Health Centres in JJ Clusters 400.00

V Social Welfare Deptt.

1. Integrated Child Development Scheme 995.00

Total 8470.00


RELOCATION OF JJ SQUATTERS

6.7 Due to encroachment on project sites, the plan implementing departments/ agencies werefacing problems in implementation of their projects. The public land encroached uponby JJ Cluster households may be seen in Table No.14.2. To sort out this problem of en-croachment on project sites, a plan scheme was started in 1990 through the Slum Wing.Since the commencement of the scheme till March, 2001, 26854 JJ Cluster households havebeen relocated by the Slum Wing.

6.8 Of the 9437 JJ Squatters households relocated between 1990-1997, 2250 households wererelocated from DDA land, 1931 from PWD land, 1656 from L & DO, 953 from MCD and 672from NDMC land. Delhi Government is providing plan assistance of Rs.10,000 per plotallocated to JJ Cluster households. An amount of Rs.109.89 crore (plan funds released)has been invested under this scheme till March, 2001.

7. URBAN DEVELOPMENT - COST RECOVERY

7.1 Government of Delhi is investing a major part of its resources both under plan and non-plan in providing and improving the civic services in sub-standard areas but without anyelement of recovery of the cost of civic services including infrastructure from the beneficia-ries. Under the relocation scheme, eligible JJ Clusters households (January, 1990) are be-ing provided 18 sq. meter plot plus 7 sq. meter open common courtyard. The allotteehouseholds contribute only Rs.5000 for the plot.

7.2 This issue of providing civic services in sub-standard areas without any recovery of cost andallotment of alternative developed plot on relocation of JJ squatter, has been discussed ata number of forums and also examined by a number of experts/groups. On all such occa-sions, the Government of Delhi has been cautioned in continuing this approach of urbandevelopment without recovery of the cost. At some of the forums, this approach has alsobeen categorised as one of the major bottlenecks in the implementation of the NCR Plan.

8. HOUSING POLICY

A comprehensive housing policy needs to be formulated for Delhi taking into account the fol-lowing factors:

(i) Carrying capacity of Delhi.

(ii) Urban renewal potential.

(iii) Involvement of private sector.

(iv) National Capital Regional Plan-2021.

(v) Master Plan for Delhi-2021.

Chapt 14

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